[Federal Register: August 13, 1999 (Volume 64, Number 156)]
[Notices]
[Page 44367-44382]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr13au99-137]
[[Page 44367]]
_______________________________________________________________________
Part IV
Department of the Interior
_______________________________________________________________________
Fish and Wildlife Service
_______________________________________________________________________
Draft Planning Policy Pursuant to the National Wildlife Refuge System
Improvement Act of 1997; Notice
[[Page44368]]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
Draft Planning Policy Pursuant to the National Wildlife Refuge
System Improvement Act of 1997
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notice.
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SUMMARY: We propose to establish requirements and guidance for National
Wildlife Refuge System planning, including Comprehensive Conservation
Plans (CCPs) and step-down management plans. This policy, which
incorporates the CCP provisions of the National Wildlife Refuge System
Improvement Act of 1997 (NWRSIA-1997), will replace Part 602 Chapters
1, 2, and 3 of the Fish and Wildlife Service Manual.
Our policy for managing units of the National Wildlife Refuge
System (System) is that we will manage all refuges in accordance with
an approved CCP that: guides management decisions; sets forth goals,
objectives, and strategies for achieving refuge purposes; contributes
to the mission of the System; and meets other relevant mandates. We
also may require step-down management plans to provide additional
details about meeting goals and objectives and implementing management
strategies identified in CCPs. Each plan will be consistent with
principles of sound fish and wildlife management, available science,
legal mandates, and our other policies, guidelines, and planning
documents.
DATES: Submit comments on or before October 12, 1999.
ADDRESSES: Send comments concerning this draft planning policy via
mail, fax or e-mail to: Chief, Division of Refuges, US Fish and
Wildlife Service, 4401 North Fairfax Drive, Room 670, Arlington,
Virginia 22203; fax (703) 358-2248; e-mail:
Planning__Policy__Comments@fws.gov
FOR FURTHER INFORMATION CONTACT: Liz Bellantoni, Refuge Planning
Coordinator, Division of Refuges, US Fish and Wildlife Service,
telephone (703) 358-2422.
SUPPLEMENTARY INFORMATION: The NWRSIA-1997 amends and builds upon the
National Wildlife Refuge System Administration Act of 1966, providing
an ``Organic Act'' for the National Wildlife Refuge System. It clearly
establishes that wildlife conservation is the singular mission of the
National Wildlife Refuge System; provides guidance to the Secretary of
the Interior for management of the National Wildlife Refuge System;
reinforces the importance of comprehensive planning for all units of
the National Wildlife Refuge System; and gives refuge managers uniform
direction and procedures for making decisions regarding wildlife
conservation and uses of the National Wildlife Refuge System.
Planning and the NWRSIA-1997
We will develop a CCP for each refuge or related complex of refuges
by October 2012 and will revise each plan every 15 years thereafter or
sooner as necessary. The NWRSIA-1997 also requires that we provide an
opportunity for active public involvement during the preparation and
revision of CCPs. These plans will guide management decisions and
establish strategies for achieving the mission of the System and the
purposes of each refuge unit.
The NWRSIA-1997 includes a number of provisions that specifically
address planning. The following is a summary of those provisions and
how they apply to us.
In general, we will propose a CCP for each refuge or related
complex of refuges. For each proposed plan we will publish a notice of
opportunity for public comment in the Federal Register. We will issue a
final CCP for each planning unit consistent with the provisions of the
NWRSIA-1997 and, to the extent practicable, consistent with the fish
and wildlife and conservation plans of the State in which the refuge is
located. We will revise the CCP every 15 years after issuance or sooner
as necessary.
We shall manage each refuge or planning unit under plans in effect
on the date of enactment of the NWRSIA-1997, to the extent such plans
are consistent with the NWRSIA-1997, until new CCPs revise or supercede
these plans. Uses or activities consistent with the NWRSIA-1997 may
occur on any refuge or planning unit before we revise existing plans or
issue new CCPs. Upon completion of a CCP for a refuge or planning unit,
we shall manage the refuge or planning unit in a manner consistent with
the CCP and revise the plan at any time if we determine that conditions
affecting the refuge or planning unit have changed significantly.
In developing each CCP for a planning unit, the plan shall identify
and describe: the purposes of each refuge comprising the planning unit;
the distribution, migration patterns, and abundance of fish, wildlife,
and plant populations and related habitats within the planning unit;
the archaeological and cultural values of the planning unit; such areas
within the planning unit that are suitable for use as administrative
sites or visitor facilities; significant problems that may adversely
affect the populations and habitats of fish, wildlife, and plants
within the planning unit and the actions necessary to correct or
mitigate such problems; and opportunities for compatible wildlife-
dependent recreational uses.
In preparing and revising each CCP, we shall, to the maximum extent
practicable and consistent with the NWRSIA-1997, consult with adjoining
Federal, State, local, and private landowners and affected State
conservation agencies. We shall also coordinate the development of the
CCP or revision with relevant State conservation plans for fish and
wildlife and their habitats.
We shall develop and implement a process to ensure active public
involvement in the preparation and revision of CCPs. At a minimum, the
publication of any final CCP shall include a summary of the comments
made by States, owners of adjacent or potentially affected land, local
governments, and any other affected persons, and a statement of the
disposition of concerns expressed in those comments.
Prior to the adoption of each CCP, we shall issue a public notice
of the draft proposed CCP, make copies of the CCP available at our
field and regional offices, and provide opportunity for public comment.
Purpose of This Draft Policy
This draft policy would establish requirements and guidance for
National Wildlife Refuge System planning, including CCPs and step-down
plans, and ensure that planning efforts comply with the provisions of
the NWRSIA-1997. This draft planning policy describes a systematic
decision-making process that fulfills the requirements we are
establishing for developing a CCP. It is not the intent of this policy
to provide step-by-step direction on how to prepare a CCP but rather to
establish the requirements and standards to which we will hold all
CCPs.
Fish and Wildlife Service Directives System
Because many of our field stations are in remote areas across the
United States, it is important that all employees have available and
know the current policy and management directives that affect their
daily activities. Our Directives System, consisting of the Fish and
Wildlife Service Manual, Director's Orders, and National Policy
Issuances, is the vehicle for issuing our standing and continuing
policy and management
[[Page 44369]]
directives. We post new directives on the Internet upon approval,
ensuring that all employees have prompt access to the most current
guidance.
The Fish and Wildlife Service Manual contains our standing and
continuing directives with which our employees must comply and has
force and effect within the Service. We use it to implement our
authorities and to ``step down'' our compliance with statutes,
executive orders, and departmental directives. It establishes the
requirements and procedures to assist our employees in carrying out our
authorities, responsibilities, and activities.
We limit Director's orders to temporary policy, procedures,
delegations of authority, emergency regulations, special assignments of
functions, and initial functional statements on the establishment of
new organizational units. We convert all Director's orders, as needed,
to appropriate parts of the Fish and Wildlife Service Manual. We
generally do not issue material appropriate for immediate inclusion in
the Fish and Wildlife Service Manual as a Director's order.
National Policy Issuances promulgate the Director's national
policies for managing the Service and our programs. These policies are
necessarily broad and generally require management discretion or
judgment in their implementation. They represent the Director's
expectations of how we will act in carrying out our official
responsibilities.
The Fish and Wildlife Service Manual, Director's Orders, and
National Policy Issuances are available on the Internet at http://
www.fws.gov/directives/direct.html. When finalized, we will incorporate
this policy on National Wildlife Refuge System planning into the Fish
and Wildlife Service Manual as Part 602 Chapters 1, 2, and 3.
Comment Solicitation
If you wish to comment, you may submit your comments by any one of
several methods. You may mail comments to: Chief, Division of Refuges,
US Fish and Wildlife Service, 4401 North Fairfax Drive, Room 670,
Arlington, Virginia 22203. You may comment via the Internet to:
Planning__Policy__Comments@fws.gov. Please submit Internet comments as
an ASCII file avoiding the use of special characters and any form of
encryption. Please also include your name and return address in your
Internet message. If you do not receive a confirmation from the system
that we have received your Internet message, contact us directly at
(703) 358-1744. You may also fax comments to: Chief, Division of
Refuges, (703) 358-2248. Finally, you may hand-deliver comments to the
address mentioned above.
Our practice is to make comments, including names and home
addresses of respondents, available for public review during regular
business hours. Individual respondents may request that we withhold
their home address from the record, which we will honor to the extent
allowable by law. There also may be circumstances in which we would
withhold from the record a respondent's identity, as allowable by law.
If you wish us to withhold your name and/or address, you must state
this prominently at the beginning of your comment. However, we will not
consider anonymous comments. We will make all submissions from
organizations or businesses and from individuals identifying themselves
as representatives or officials of organizations or businesses,
available for public inspection in their entirety.
We seek public comments on this draft planning policy and will take
into consideration comments and any additional information received
during the 60-day comment period.
We will send a copy of the draft Fish and Wildlife Service Manual
chapters on National Wildlife Refuge System planning to anyone who
would like to receive them. In addition, these chapters will be
available on the National Wildlife Refuge System web site (http://
refuges.fws.gov [select link to ``Library,'' then link to ``Service
Manual/Policy--Draft Chapters'']) during the 60-day comment period.
Primary Author: Elizabeth Bellantoni, Fish and Wildlife Biologist
(Refuge Planning Coordinator), Division of Refuges, U.S. Fish and
Wildlife Service, is the primary author of this notice.
Dated: July 14, 1999.
John G. Rogers,
Director.
Refuge Management
Part 602 National Wildlife Refuge System Planning
Chapter 1 Refuge Planning Overview
602 FW 1
1.1 What is the purpose of Part 602? Part 602 provides guidance
for National Wildlife Refuge System (System) planning, including
specific chapters on Comprehensive Conservation Plans (CCPs) and step-
down management plans. This chapter (602 FW 1) provides an overview of
refuge planning.
1.2 What does Part 602 apply to? Part 602 applies to all units of
the National Wildlife Refuge System.
1.3 What is our policy for managing refuges? We will manage all
refuges in accordance with an approved CCP that guides management
decisions and sets forth goals, objectives, and strategies, which when
implemented will achieve refuge purposes, contribute to the System
mission, and meet all other relevant mandates. We also may require
step-down management plans to provide additional details about meeting
goals and objectives and implementing management strategies identified
in CCPs. Each plan will be consistent with principles of sound fish and
wildlife management, available science, legal mandates, and our other
policies, guidelines, and planning documents.
1.4 What are our authorities? Authorities listed below include
laws that require us to manage units of the System in accordance with
approved CCPs and to integrate refuge planning decisions with the
National Environmental Policy Act (NEPA) process.
A. National Wildlife Refuge System Administration Act of 1966 as
amended by the National Wildlife Refuge System Improvement Act of 1997,
16 U.S.C. 668dd-668ee (Refuge Administration Act). This law states that
`` * * * the Secretary shall--(i) propose a comprehensive conservation
plan for each refuge or related complex of refuges * * * in the System;
(ii) publish a notice of opportunity for public comment in the Federal
Register on each proposed conservation plan; (iii) issue a final
conservation plan for each planning unit consistent with the provisions
of this Act and, to the extent practicable, consistent with fish and
wildlife conservation plans of the State in which the refuge is
located; and (iv) not less frequently than 15 years after the date of
issuance of a conservation plan under clause (iii) and every 15 years
thereafter, revise the conservation plan as may be necessary.'' This
law provides additional detail on conservation planning for the System.
B. Alaska National Interest Lands Conservation Act of 1980 as
amended, 16 U.S.C. 140hh-3233, 43 U.S.C. 1602-1784 (ANILCA). Section
304 states, in part, ``The Secretary shall prepare, and from time to
time, revise, a comprehensive conservation plan * * * for each
refuge.'' Find additional guidance on the content of these plans and on
management direction in this and other sections of ANILCA. If any
provisions of the Refuge Administration Act conflict with the
provisions of
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ANILCA, the provisions of ANILCA shall prevail for refuges in Alaska.
C. National Environmental Policy Act (NEPA) of 1969, as amended, 42
U.S.C. 4321-4347, and the Council on Environmental Quality's (CEQ)
Regulations for Implementing the Procedural Provisions of NEPA, 40 CFR
1500-1508. NEPA is the basic national charter for the protection of the
environment (NEPA, section 2). The procedural provisions in CEQ's
regulations require Federal agencies to: integrate the NEPA process
with other planning at the earliest possible time in order to provide a
systematic interdisciplinary approach; identify and analyze
environmental effects of their actions; describe appropriate
alternatives to the proposal; involve the affected State and Federal
agencies, Indian tribes, and the affected public in the planning and
decision making process; and fully integrate all refuge proposals that
may have an impact on the environment with the procedural provisions of
NEPA (40 CFR 1501.2).
1.5 What are the goals of refuge planning?
A. To help ensure that we manage the System for the conservation of
fish, wildlife, plants, and their habitats; and that refuge management
accomplishes our policies, the System mission, and the purposes for
which we established the refuge.
B. To help ensure that the administration of the System contributes
to the conservation of biological diversity and integrity and to the
structure and function of the ecosystems of the United States.
C. To help ensure that our other programs; Federal, State, and
local agencies; Tribal governments; conservation organizations;
adjacent landowners; and the public have opportunities to participate
in the refuge planning process.
D. To provide a basis for adaptive management by monitoring
progress, evaluating plan implementation, and updating refuge plans
accordingly.
E. To promote efficiency, effectiveness, continuity and national
consistency in refuge management.
F. To help ensure consistent Systemwide consideration of the six
priority general public uses--hunting, fishing, wildlife observation
and photography, and environmental education and interpretation--
established by the Refuge Administration Act.
1.6 What do the following terms mean? (Quotations are from the
Refuge Administration Act)
A. Alternative. Alternatives are different means of accomplishing
refuge purposes and goals, contributing to the System mission, and
resolving issues.
B. Comprehensive Conservation Plan/CCP. A document that describes
the desired future conditions of the refuge and provides long-range
guidance and management direction to accomplish the purposes of the
refuge, contribute to the mission of the System, and meet other
relevant mandates.
C. Coordination Area. A wildlife management area that is made
available to a State, by ``(A) cooperative agreement between the United
States Fish and Wildlife Service and the State fish and game agency
pursuant to section 4 of the Fish and Wildlife Coordination Act (16
U.S.C. 664); or (B) by long-term leases or agreements pursuant to the
Bankhead-Jones Farm Tenant Act (50 Stat. 525; 7 U.S.C. 1010 et seq.).''
States manage coordination areas but they are part of the Refuge
System. We do not require CCPs for Coordination Areas.
D. Goal. Descriptive, open-ended, and often broad statement of
desired future conditions that conveys a purpose but does not define
measurable units.
E. Issue. Any unsettled matter that requires a management decision,
e.g., an initiative, opportunity, resource management problem, threat
to the resources of the unit, conflict in uses, public concern, or the
presence of an undesirable resource condition.
F. National Wildlife Refuge (refuge). ``A designated area of land,
water, or an interest in land or water within the System, but does not
include Coordination Areas.'' Find a complete listing of all units of
the System in the current Annual Report of Lands Under Control of the
U.S. Fish and Wildlife Service.
G. National Wildlife Refuge System Mission (mission). ``The mission
of the System is to administer a national network of lands and waters
for the conservation, management and, where appropriate, restoration of
the fish, wildlife and plant resources and their habitats within the
United States for the benefit of present and future generations of
Americans.''
H. Objective. An objective is a concise statement of what we want
to achieve, how much we want to achieve, when and where we want to
achieve it, and who is responsible for the work. Objectives derive from
goals and provide the basis for determining management strategies,
monitoring refuge accomplishments, and evaluating the success of the
strategies. Make your objectives attainable and time-specific and state
them quantitatively to the extent possible. If you cannot state
objectives quantitatively, state them qualitatively.
I. Planning Area. A planning area may include lands outside
existing planning unit boundaries currently studied for inclusion in
the System and/or partnership planning efforts. It may also include
watersheds or ecosystems that affect the planning unit.
J. Planning Team. Planning teams are interdisciplinary in
membership and function. Teams generally consist of a Planning Team
Leader; Refuge Manager and staff biologists; and other appropriate
specialists (e.g., social scientist, ecologist, recreation specialist).
Team members may come from our other programs and other Federal,
Tribal, and State natural resource agencies. The planning team prepares
the CCP.
K. Planning Team Leader. The Planning Team Leader typically is a
professional planner or natural resource specialist knowledgeable of
the requirements of the National Environmental Policy Act (NEPA) and
who has planning experience. The Planning Team Leader manages the
refuge planning process.
L. Planning Unit. A single refuge, an ecologically/administratively
related refuge complex or distinct unit of a refuge.
M. Purposes of the Refuge. ``The purposes specified in or derived
from the law, proclamation, executive order, agreement, public land
order, donation document, or administrative memorandum establishing,
authorizing, or expanding a refuge, refuge unit, or refuge subunit.''
N. Refuge Operating Needs System (RONS). The Refuge Operating Needs
System is a national database which contains the unfunded operational
needs of each refuge. We include projects required to implement
approved plans, and meet goals, objectives, and legal mandates.
O. Step-down Management Plans. Step-down management plans deal with
specific management subjects (e.g., habitat, public use, fire, safety)
or groups of related subjects. Step-down management plans describe
management strategies and implementation schedules.
P. Strategy. A specific action, tool or technique or combination of
actions, tools, and techniques used to meet unit objectives.
Q. U.S. Fish and Wildlife Service Mission. Our mission is working
with
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others to conserve, protect, and enhance fish and wildlife and their
habitats for the continuing benefit of the American people.
R. Wildlife-Dependent Recreational Use. ``A use of a refuge
involving hunting, fishing, wildlife observation and photography, or
environmental education and interpretation.'' These uses are the six
priority general public uses of the Refuge System as established in the
National Wildlife Refuge System Administration Act.
S. Vision Statement. A concise statement of what the planning unit
could be, or what we could do, in the next 10 to 15 years, based
primarily upon the System mission and specific refuge purposes, and
other relevant mandates.
1.7 What is the relationship between the Refuge System, and other
planning efforts? Refuge planning should maintain continuity and
consistency with other planning initiatives. The relationship between
these planning efforts is hierarchical, starting from national plans to
regional, State, and ecoregion level plans stepping down to refuge-
specific planning. See Exhibit 1. The process of adaptive management
uses feedback from refuge research and monitoring, and evaluation of
management actions to support or modify goals, objectives, and
strategies at all planning levels.
A. National and Regional Plans. Opportunities and issues to address
in refuge planning will consider other Service documents that address
particular programs, species, habitats, public uses, economic uses,
archaeological resources, etc. National and regional goals, objectives,
strategies, and policies influence management planning for refuges.
Source documents include the Service Manual, the North American
Waterfowl Management Plan, National Outreach Strategy, regional
resource plans, endangered species recovery plans, migratory bird and
flyway plans, fishery resource plans, joint venture plans, Partners in
Flight plans, and strategies to promote the conservation of natural
biological diversity. The contribution of the refuge to achieving
regional and national goals will help implement our mission and ensure
the integrity of the System.
B. Service Ecoregion Plans, State Fish and Wildlife Conservation
Plans, and Other Landscape Level Plans. Refuge planning will reflect
conservation goals and objectives for the landscapes in which the
refuges are located. Refuges must review goals and objectives of
existing ecosystem plans and determine how the refuge can best
contribute to the functioning of the ecosystem. Coordinate refuge
planning with State conservation agencies, Tribal governments, other
government agencies, and non-governmental organizations. To the extent
practicable, the plans will be consistent with the fish and wildlife
conservation plans of the State and the conservation programs of
Tribal, public, and private partners within the ecosystem.
C. Land Acquisition Planning.
(1) Refuge planning typically begins before the establishment of an
area as a unit of the System. Land acquisition planning, (usually
resulting in a Land Protection Plan (LPP) and associated NEPA document)
is a preliminary step in the continuous, integrated refuge planning
process. This process eventually results in completion of a CCP and
appropriate refuge step-down plans. Other land use, species, or habitat
protection planning efforts, or legislative or executive directive may
precede land acquisition planning. Initial refuge establishment
documentation (LPP and associated NEPA document) should identify the
approved refuge boundary, refuge purpose(s), goals, and general
management direction.
(2) Planning for proposed new refuges or major expansions to
existing refuges not undergoing a CCP will include the development of a
Conceptual Management Plan (CMP) for the new unit. We design the CMP to
provide general, interim management direction. The CMP should identify
refuge purpose(s), interim goals, and pre-existing compatible wildlife-
dependent recreational uses that we may allow to continue on an interim
basis. We define the interim period as the duration of time between
establishment of a new refuge or refuge expansion and the completion of
an approved CCP. Fully integrate land acquisition planning efforts into
CCP preparation whenever possible. Some proposed new refuges or refuge
expansions may warrant CCP development at the time of acquisition
planning. Include appropriate Realty staff on the planning team when
considering land acquisition during the CCP process to ensure
consistency with land acquisition policy. Also see 341 FW 2.
D. Comprehensive Conservation Plans (CCP). The CCP is a document
that describes the desired future conditions of the refuge and provides
long-range guidance and management direction for the Refuge Manager to
accomplish the purposes of the refuge, contribute to the mission of the
System, and to meet other relevant mandates. See 602 FW 2. For refuges
established after October 9, 1997, prepare CCPs when the refuge obtains
staff and acquires a land base sufficient to accomplish refuge
purposes, but no later than 15 years after we establish the refuge.
Convert refuge long-range management plans (e.g., master plans and
refuge management plans), approved prior to October 9, 1997, into CCPs
with appropriate public involvement and NEPA compliance no later than
October 2012.
E. Step-down Management Plans. Step-down management plans provide
the details necessary to implement management strategies identified in
the CCP. CCPs will either incorporate or identify step-down plans
required to fully implement the CCP. After completion of the CCP,
modify existing step-down plans to accomplish stated objectives as
needed. See 602 FW 3.
F. Integration with Budget Development and Implementation. We will
use CCPs to guide annual budget requests. We will identify the unfunded
costs of implementing strategies in refuge plans using our budget
databases, including the Refuge Operating Needs System (RONS),
Maintenance Management System (MMS), and Land Acquisition Priority
System (LAPS). As we complete or update each plan, we will review and
update these databases to incorporate projects identified in refuge
plans. The total funding and staffing identified in these databases
represents the additional resources required to fully implement the
refuge plans.
1.8 Who are the responsible officials?
A. Director. The Director is responsible for providing national
policy and ensuring adherence to refuge planning policy.
B. Regional Director. The Regional Director: (1) Ensures compliance
with national planning policy, NEPA, and other applicable laws and
policies; (2) approves CCPs and associated NEPA and other agency
compliance documents; and (3) ensures that we manage refuges in
accordance with approved CCPs. The Regional Director or designee
approves step-down plans, determines planning priorities and allocates
funds to develop and implement plans.
C. Refuge Programmatic Assistant Regional Director (PARD)/
Geographic Assistant Regional Director (GARD). The Refuges and Wildlife
Program Assistant Regional Directors are responsible for initiating and
completing refuge plans, budgeting for planning, ensuring programmatic
staff participation, and developing planning priorities with input from
the Geographic Assistant Regional
[[Page 44372]]
Directors. The Geographic Assistant Regional Directors are responsible
for ensuring that ecosystem teams participate in developing plans and
implementing approved plans.
D. Refuge Planning Coordinators. The Washington Office, Division of
Refuges and each Region will designate a Refuge Planning Coordinator.
The Coordinators will periodically meet as a national team to review
and recommend changes to planning policy, resolve common planning
problems and issues, and help ensure national consistency. In
cooperation with representatives of our National Conservation Training
Center, the Coordinators will establish and maintain appropriate
training courses. Refuge Planning Coordinators will provide guidance
and direction to assist regional and field-based planning staff and
planning team members. The coordinators are also responsible for
maintaining regional planning schedules and updating status reports and
funding needs for the planning program.
E. Planning Team Leader. The Planning Team Leader is responsible
for initiation of the planning process, preparation and completion of
refuge plans, and associated compliance requirements. The Planning Team
Leader is responsible for identifying appropriate and proper
representation on the interdisciplinary planning team, including core
team members, support personnel, and outside or contract assistance.
The Refuge Manager and Planning Team Leader submit the final CCP
through line supervision for concurrence and approval by the Regional
Director.
F. Refuge Supervisor. The Refuge Supervisor is responsible for
overseeing participation of the Refuge Manager in CCP preparation and
implementation, and for providing direction and guidance on compliance
with System policy and regulations.
G. Refuge Manager. The Refuge Manager prepares the CCP working
closely with the Planning Team Leader. The Refuge Manager assures that
the refuge staff participates in plan development. The Refuge Manager
and Planning Team Leader submit the final CCP through line supervision
for concurrence and approval by the Regional Director. The Refuge
Manager is responsible for making compatibility determinations and
ensuring that agency compliance requirements are met and that the CCP,
when implemented, will achieve the purposes of the refuge and will
contribute to fulfilling the System mission. The Refuge Manager is
responsible for implementing approved comprehensive and step-down
plans, monitoring progress, and recommending changes to plans based on
monitoring and evaluation. The Refuge Manager also reports plan
accomplishments through standard reporting mechanisms and budgeting
procedures.
H. Planning Team. The planning team, coordinated by the Planning
Team Leader, is responsible for the initiation and completion of all
planning steps, including public involvement and NEPA compliance,
resulting in a refuge CCP. We describe the steps in 602 FW 2.4 C.
I. Regional Environmental (NEPA) Coordinator. The Regional
Environmental (NEPA) Coordinator provides technical assistance on NEPA-
related matters.
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Refuge Management
Part 602 National Wildlife Refuge System Planning
Chapter 2 Comprehensive Conservation Planning Process
602 FW 2
2.1 What is the purpose of this chapter? Comprehensive
Conservation Plans (CCPs) describe the desired future conditions of a
refuge, and provide long-range guidance and management direction for
the Refuge Manager to accomplish the purposes of the refuge, contribute
to the mission of the System, and meet other relevant mandates. The
purpose of this chapter is to describe a systematic decision-making
process that fulfills the requirements we are establishing for
developing a CCP. It is not the intent of this policy to provide step-
by-step direction on how to prepare a CCP but rather to establish the
requirements and standards to which we will hold all CCPs. Experienced
planners lead the CCP process. We strongly encourage the Refuge Manager
and other key planning team members to attend the National Conservation
Training Center (NCTC) course on Refuge Comprehensive Conservation
Planning.
2.2 What is our policy for CCPs? We will prepare a CCP for each
refuge in existence as of October 9, 1997, by October 2012. For refuges
established after October 9, 1997, we will prepare CCPs when we staff
the refuge and acquire a land base sufficient to accomplish refuge
purposes, but no later than 15 years after establishment of the refuge.
To the extent practicable, we will coordinate the development of CCPs
with affected States. We will continue to manage each refuge or
planning unit with existing plans effective prior to October 9, 1997,
to the extent these plans are consistent with the Refuge Administration
Act, until we revise such plans or new CCPs supercede them. Upon
completion of a CCP, we will manage the refuge or planning unit in a
manner consistent with the CCP. We will revise the CCP every 15 years
thereafter, or earlier, if conditions that affect the refuge or
planning unit change significantly.
2.3 What are our goals for Comprehensive Conservation Planning?
A. To provide a clear and comprehensive statement of desired future
conditions for each refuge or planning unit.
B. To help ensure that we manage each refuge to fulfill the mission
of the System as well as the specific purposes for which we established
that refuge.
C. To encourage that we conduct refuge planning in concert with an
ecosystem approach. This includes conducting concurrent refuge planning
for refuges within the same watershed or ecosystem, and to consider the
broader goals and objectives of the ecoregion, ecosystems and
watersheds in which refuges are located when developing management
direction.
D. To support management decisions and their rationale by sound
professional judgment.
E. To provide a forum for the public to comment on the type,
extent, and compatibility of uses on refuges.
F. To provide a uniform basis for budget requests for operational,
maintenance, and capital improvement programs.
G. To ensure public involvement in refuge management decisions by
providing a process for effective coordination, interaction, and
cooperation with affected parties, including Federal agencies, State
conservation agencies, Tribal governments, local governments,
conservation organizations, adjacent landowners, and interested members
of the public.
2.4 What is the Comprehensive Conservation Planning process?
A. The Comprehensive Conservation Planning process (see Exhibit 1)
provides consistent guidelines for developing CCPs. We designed the
planning process to result in the development of vision statements,
goals, objectives, and management strategies that achieve refuge or
planning unit purpose(s), contribute to the fulfillment of the System
mission, and meet other relevant mandates.
B. Each CCP will comply with the provisions of the National
Environmental Policy Act (NEPA) through the concurrent preparation of
an Environmental Assessment (EA) or Environmental Impact Statement
(EIS) that will accompany or be integrated with the CCP. We have
integrated NEPA compliance requirements directly into the CCP planning
process. When preparing an EA, consider integrating it into the draft
CCP. When preparing an EIS with a CCP, integrate the documents. See
Exhibit 1. Following completion of the final CCP/NEPA document, the
product of the Comprehensive Conservation Planning process will be a
stand-alone CCP, separate from the EA or EIS.
C. Our Comprehensive Conservation Planning process consists of the
following eight steps. Although we display the steps sequentially, CCP
planning and NEPA documentation are iterative processes. It is normal
to cycle through some of the steps more than once or to have several
steps occurring simultaneously. Actions within each of the eight steps
may not be sequential.
(1) Preplanning: Plan the Plan
(a) Planning Team. Assemble the planning team, including the
Planning Team Leader, the Refuge Manager and key staff members, and
appropriate support staff or specialists from both regional and
ecosystem teams (e.g., fisheries, cultural resources, endangered
species, external affairs/outreach, realty, contaminants, migratory
birds, water resources, etc.). The planning team also may include
representatives from appropriate State or Tribal conservation agencies,
and any agency that may have a direct land management relationship with
the refuge.
(b) Identify Planning and Compliance Requirements and Special
Designations. The planning team will identify planning and compliance
requirements by reviewing our mission statements and those of the
System, as well as refuge purposes and establishing legislation of the
refuge. See Exhibit 2 for a list of laws and Executive Orders that may
apply and Exhibit 3 for a checklist of elements we must include within
a CCP. The planning team will identify and review other relevant
mandates including laws, executive orders, regulations, and our
policies, especially those with compliance requirements. The planning
team also will review any existing special designation areas such as
wilderness, research natural areas, wild and scenic rivers, wetlands of
international importance, Western Hemisphere shorebird reserves, etc.,
and will specifically address the potential for any new special
designations. Concurrent with the CCP process we will conduct a
wilderness review and incorporate a summary of the review into the CCP.
Refer to the wilderness section of the manual (Part 610) for guidance.
(c) Purpose and Need for the Plan. The purpose of developing the
CCP is to provide the Refuge Manager with a 15-year management plan for
the conservation of fish, wildlife, and plant resources and their
related habitats, while providing opportunities for compatible
wildlife-dependent recreational uses. The CCP, when fully implemented,
should achieve planning unit purpose(s), contribute to the mission of
the System, and address any relevant mandates. The CCP must be specific
to the planning unit and identify the overarching wildlife, public, or
management needs for the refuge.
[[Page 44375]]
(d) Planning Area, Data Needs, and Data Standards. Identify the
relationship between the planning unit and its ecosystem(s) as well as
relationships between the refuge and any other refuges or protected
areas. Identify data available to address issues discussed in Step (g)
Internal Scoping. You do not need to develop new data for the CCP; the
CCP can identify the need for further data collection as a part of plan
implementation and refinement. Identify and describe the following as
appropriate (also see Exhibit 3).
(i) Distribution, migration patterns, and abundance of fish,
wildlife, and plant populations, including any threatened or endangered
species, and related habitats.
(ii) Significant problems that may adversely affect the populations
and habitats of fish, wildlife, and plants found within the planning
unit and the actions necessary to correct or mitigate the problems.
(iii) Diversity of habitats and natural communities.
(iv) Archaeological and cultural resources.
(v) Land acquisition or habitat protection efforts.
(vi) Habitat management practices.
(vii) Natural and historic role of fire and other major disturbance
agents affecting ecological processes.
(viii) Water resources including quality and quantity.
(ix) Known or suspected sources of environmental contaminants and
their potential impacts on the planning unit (refer to the Contaminant
Assessment Program).
(x) Opportunities for compatible wildlife-dependent recreation.
(xi) Potential need for administrative sites or visitor facilities.
(xii) Existing administrative resources, including staffing,
funding, and facilities.
(xiii) Existing special management areas, or the potential for such
designations (e.g., wilderness, research natural areas, and wild and
scenic rivers).
(e) Review all available information, plans, data, maps, and data
standards. Based on this review, determine what the initial planning
area should include and identify any additional information and data
needs, including mapping and GIS needs. Note: All Federal agencies and
their contractors must comply with data standards endorsed by the
Federal Geographic Data Committee (Executive Order 12906; 59 FR 17671,
April 13, 1994). Of particular relevance to refuge planning are the
Vegetation Classification Standard (FGDC-STD-005) and the
Classification of Wetlands and Deep Water Habitats (FGDC-STD-004).
Compliance with these standards will facilitate the sharing and
exchange of high-quality vegetation and wetland data among Federal
agencies and their partners. We also are developing other data
standards, such as cartographic standards for delineation of refuge
boundaries and land status.
(f) Vision and Goals. Review the existing planning unit vision
statement and goals and determine the need for revision. If these do
not exist, prepare draft vision and goals for consideration during
public scoping. At a minimum each refuge should develop goals within
the following management areas: habitat; fish, wildlife, and plant
populations; compatible wildlife-dependent recreation; and other
relevant mandates (such as refuge-specific legislation, executive
orders, special area designations, etc.). In some cases, one or more of
these areas will not require goal statements because opportunities do
not exist in the management area. Goals will reflect planning unit
purposes, contribute to the mission of the System, and will be
consistent with relevant mandates and principles of sound fish and
wildlife management. Planning unit goals will also reflect ecosystem
goals to the extent these goals do not conflict with the System mission
or the purposes for which we established the refuge. We also may
develop refuge goals for our relevant mandates. Subsequently, we will
develop objectives and strategies for planning unit goals (see 602 FW
2.5 (D)(a) Objective Development). For additional information on
developing goals and objectives, see the Writing Refuge Management
Goals and Objectives: A Handbook (March 1996).
(g) Internal Scoping. The planning team begins the internal scoping
process by identifying management concerns, issues, and opportunities
to resolve them, as well as any potential impacts and alternatives that
we may need to address in the CCP and the NEPA analysis. Identify any
significant problems that may adversely affect the populations and
habitats of fish, wildlife, and plants found within the planning unit
(including candidate, threatened, and endangered species) and the
actions necessary to correct or mitigate such problems. Make a
preliminary assessment of water quality and quantity issues. See 403
FW1-3. Identify the potential need for administrative sites or visitor
facilities, and land acquisition. Review the background, rationale, and
the success or failure of any controversial management actions, and
determine whether you need more information or data. Identify any
additional information and data needed where appropriate.
(h) Public Involvement/Outreach Planning. The planning team will
prepare a Public Involvement/Outreach Plan indicating how and when we
will invite the affected public to participate in the development of
the CCP. Establish a mailing list. Identify appropriate techniques and
materials to use in public involvement efforts. Public involvement and
outreach are integrated into each step and will continue throughout the
planning process. For additional information on public involvement
techniques, consult the Public Participation Handbook (U.S. Fish and
Wildlife Service, 1985) or the NCTC Refuge Comprehensive Conservation
Planning Course Handbook and Reference Notebook.
(i) Work Plan/Planning Schedule. Establish a work plan or planning
schedule for the project. Determine who will be responsible for
carrying out identified tasks, gathering information and data, and
preparing products identified in the work plan or schedule. Identify
all key NEPA compliance steps and public involvement activities.
Identify any additional expertise, besides the planning team, required
to prepare the CCP. This may include an economist, a facilitator for
public and other meetings, contracted professional services, etc.
(j) Planning Record. Establish a Planning Record to document the
preparation of the CCP and NEPA compliance, and assign its maintenance
to a team member. The Planning Record will serve as a valuable
reference source and provide important background and historical
information. If there is a legal challenge to the CCP, use the Planning
Record to construct the Administrative Record. For additional
information on the Planning Record, consult the NCTC Refuge
Comprehensive Conservation Planning Course Handbook and Reference
Notebook.
(2) Initiate Public Involvement and Scoping
(a) Notice of Intent. Prepare a Notice of Intent (NOI) to prepare a
CCP, with appropriate NEPA compliance, and publish the notice in the
Federal Register. The notice initiates public scoping for the CCP/NEPA
planning and decision-making process. If we initially determine that we
will prepare an EIS for the CCP, the NOI should specify that. If at any
time during the planning process we decide to prepare an EIS, we will
publish a NOI to prepare an EIS in the Federal Register. A 30-day
comment period will follow this notice.
[[Page 44376]]
(b) Public Scoping. Using news releases to the local media and
other appropriate means, notify the affected public of the opportunity
to participate in the preparation of the CCP and begin the scoping
process. Conduct public involvement activities and gather public
comments on any existing planning unit vision statements, goals, and
objectives. Encourage the public to help identify potential issues,
management actions and concerns, significant problems or impacts, and
opportunities or alternatives to resolve them.
(c) Issues and Data Needs. Analyze all comments gathered and
recorded during the scoping process. Identify any new issues, concerns,
or significant problems, opportunities to resolve them, and potential
refinements or revisions of existing planning unit vision statements,
goals, and objectives. Based on this analysis, identify any additional
information and data needed.
(3) Review Vision Statement and Goals and Determine Significant
Issues
(a) Vision and Goals. Review and evaluate the public's comments on
the planning unit vision statement and goals. Based on this review,
modify the vision and goals for the planning unit as appropriate. See
602 FW2.5A(5).
(b) Determine Significant Issues. Review and evaluate all potential
issues, management concerns, and problems and the opportunities to
resolve them that the planning team or the public have identified.
Identify those issues and concerns that are significant and that the
CCP and associated NEPA document will address. Document the rationale
for selecting significant issues, as well as the rationale for not
selecting the other issues and concerns (e.g., outside the scope of the
CCP, does not contribute to meeting refuge purposes/mission, etc.).
(4) Develop and Analyze Alternatives, Including the Proposed
Action. This part of the process is not sequential, it is iterative.
Iterations of issue assessment; refinement and development of goals,
objectives, and strategies; analysis and comparison of impacts and
benefits of management actions; and the packaging or combining of
similar themes or programs to develop preliminary alternatives result
in the development of alternative management plans, and assessment of
their environmental consequences. Start the process by defining the No
Action or Continuation of Current Management Alternative. The
alternatives should reflect different sets of strategies and actions to
achieve refuge purposes, goals and objectives. Consider presenting this
information in a matrix comparing issues, impacts, and benefits for
each alternative.
(a) No Action Alternative. Define the No Action Alternative, which
usually will be a continuation of current planning unit management
strategies, fish, wildlife, plant populations, habitat, and public use
management with no changes, or changes that would have occurred without
the CCP. Develop maps that depict the No Action Alternative and
document current management strategies.
(b) A Range of Alternatives. Develop a range of alternatives, or
different approaches to planning unit management, that we could
reasonably undertake to achieve planning unit goals and resolve any
significant issues identified. Combine different sets of objectives and
strategies to provide alternatives for management of the refuge. Give
an equal effort to each alternative regarding specific objectives and
strategies so that the decision-maker can make an informed choice. NEPA
requires an equal and full analysis of all alternatives considered for
implementation.
(c) Proposed Action. Identify our proposed action. This may be the
alternative that best achieves planning unit purpose(s), vision, and
goals; contributes to the System mission; addresses the significant
issues and relevant mandates, and is consistent with principles of
sound fish and wildlife management. Our proposed action is, for all
practical purposes, the draft CCP for the planning unit.
(d) Objective Development. Develop objectives to address each goal.
Consult our manual chapters on habitat management, populations
management, and wildlife-dependent recreation during the development of
objectives. The planning team should develop detailed, quantitative
objectives when possible, using available information. Developing
detailed objectives at this stage will expedite development of step-
down plans. Develop objectives for specific refuge habitat types,
management units, key species (e.g., migratory birds and threatened and
endangered species), wildlife-dependent recreation, monitoring
populations of fish, wildlife, and plants and their habitats, and other
areas of management. Objectives may also deal with station information
needs (for example, including the development of baseline data),
administrative needs, and any other issues we need to address to meet
the goals of the refuge. Document the rationale which supports each
objective. The planning team also should consult Writing Refuge
Management Goals and Objectives: a Handbook (March 1996). Prepare step-
down management plans to provide the specific details of how to
implement some strategies, and accomplish some objectives, if needed.
(e) Strategy Development. Develop strategies to identify the
specific actions, tools, or techniques which are necessary to
accomplish each objective. Strategies represent specific projects that
provide the detail required to assess and develop funding, staffing,
and partnerships needed to implement the plan. Develop inventory and
monitoring strategies to measure implementation results in quantifiable
and verifiable ways. We may need step-down management plans to provide
the specific details of how to implement some strategies.
(f) Environmental Consequences. Assess the environmental
consequences of implementing each alternative as required by NEPA.
Compare the consequences of implementing each alternative in relation
to the No Action Alternative, which serves as a baseline. Describe the
adverse and beneficial impacts of implementing each alternative on
fish, wildlife, and plants, and their habitats; any threatened or
endangered species; cultural resources; the local economy; the ability
to provide opportunities for compatible wildlife-dependent recreational
uses; and other issues identified earlier in the planning process. This
analysis must provide the level of detail necessary to assess the
compatibility of all proposed uses. Describe each alternative's ability
to achieve planning unit purpose(s), vision, and goals; contribute to
the System mission; and address the significant issues and relevant
mandates. This assessment will also identify the funding, staffing, and
facilities required for implementation of each alternative.
(5) Prepare Draft Plan and NEPA Document
(a) Draft CCP and NEPA Document. Concurrently prepare the draft CCP
and appropriate NEPA documentation. When preparing an EA, consider
integrating the draft CCP with the EA. When preparing an EIS with a
CCP, integrate the documents. If you decide to prepare separate
documents, see Exhibit 4 for a recommended CCP outline. If the
documents are separate, the proposed action and alternatives in the EA/
EIS must fully contain all of the major actions of the draft CCP. If
you decide to merge the CCP and NEPA documents, see Exhibit 5 for a
recommended outline. During the process of preparing the plan, refer to
Exhibit 3 to ensure that you include all
[[Page 44377]]
required elements in the plan. Ensure compliance regarding other
programs and policies, including Section 7 of the Endangered Species
Act, Section 404 of the Clean Water Act, Section 106 and 110 of the
National Historic Preservation Act, Section 14 of the Archaeological
Resources Protection Act, Executive Order 13007--Protection of Sacred
Sites, Executive Order 11990--Protection of Wetlands, Executive Order
11988--Floodplain Management, etc. See Exhibit 2 for a list of relevant
mandates to consider during the planning process.
(b) Compatibility Determinations. Complete or recertify
compatibility determinations as part of the CCP process for all
individual uses, specific use programs, or groups of uses associated
with our proposed action. Prepared concurrently with the CCP,
incorporate the draft compatibility determinations into the draft CCP
as an appendix. We require public review and comment for all
compatibility determinations. We can achieve this concurrently through
public review and comment of the draft CCP and NEPA document. While
other alternatives do not require formal compatibility determinations,
assess the environmental consequences, and, for all practical purposes,
compatibility of all uses proposed in those alternatives in the NEPA
document. For additional information on compatibility determinations,
consult the Service Manual, Part 603, Chapter 3 (603 FW 3).
(c) Interim Compatibility Determinations. If our proposed action
includes expanding the planning unit by acquiring new lands, the draft
CCP and NEPA documents also must identify any existing wildlife-
dependent recreational uses occurring on those lands. Also identify
those uses deemed compatible that we may allow to continue on an
interim basis once we acquire the lands, pending completion of the CCP.
Incorporate these interim compatibility determinations into the draft
CCP and NEPA document.
(d) Internal Review. Submit the draft CCP and NEPA document for
internal review within the Region following established regional
procedures. Also submit these documents for internal review to all
Regional Planning Coordinators and the Washington Office Planning
Coordinator. Consider all comments received from the internal reviews
and make appropriate changes to the draft document. Print the draft CCP
and NEPA document and prepare for public review.
(e) Public Notice, Review, and Comment. Prepare a Notice of
Availability of the draft CCP and NEPA document and publish it in the
Federal Register. Notify the affected public of the availability of
these documents through other appropriate means, as identified in the
Public Involvement/Outreach Plan. Public notices will make clear that
we are seeking concurrent review on compatibility determinations.
Provide a minimum of 30 days review for a draft CCP with an EA and 60
days for a draft CCP with a draft EIS. Make copies of the draft CCP and
NEPA document available to appropriate elected officials; Federal,
State, and local agencies; Tribal governments; organizations;
libraries; adjacent landowners; and individuals requesting them.
Conduct appropriate public involvement activities as called for in the
Public Involvement/Outreach Plan. Document all public comments, both
written and oral, received on the draft CCP and NEPA document as part
of the planning record.
(6) Prepare and Adopt Final Plan
(a) Public Comment, Analysis, and Response. Review and analyze all
written and oral comments received from the public on the draft CCP and
NEPA document. Determine which comments are substantive and warrant
written response. Modify the document(s) as appropriate. Prepare a
summary of the public comments received and a statement of the
disposition of concerns expressed in those comments, noting where we
have changed the document(s) or why we did not make such changes.
Incorporate the summary and statement of disposition into the final
document(s) (usually in the NEPA document or a CCP appendix).
(b) Final CCP and NEPA Document(s). Identify our preferred
alternative and prepare the final CCP and appropriate NEPA
documentation. The preferred alternative can be the proposed action, no
action alternative, or another alternative discussed in the draft CCP
and NEPA document. Following completion of the final CCP/NEPA document,
the product of the CCP process is a stand-alone CCP (the preferred
alternative for the planning unit). During the process of preparing the
final plan, refer to Exhibit 3 to ensure that you include all required
elements.
(c) Internal Review. Submit the final document(s) for internal
review within the region according to established regional procedures.
Consider all comments received from the internal review and make
appropriate changes to the final document(s).
(d) Decision Document. The decision document will certify that
agency compliance requirements are met and that the CCP, when
implemented, will achieve the purposes of the refuge and will
contribute to fulfilling the System mission.
(i) CCP with an EA and FONSI. The Refuge Manager and Planning Team
Leader submit the final CCP and the FONSI through line supervision for
concurrence and approval by the Regional Director. The Regional
Director will sign and date both the FONSI and the final CCP. Following
approval, print and distribute the final documents and appropriate
appendices. Provide the FONSI to all interested and affected parties.
Concurrent with distribution of the FONSI, provide the final, approved
CCP or a summary to all interested parties. In some cases we may
require a 30-day public review period for the FONSI (see 550 FW 3.3
B(4)(c)). In these cases, we may not sign or release the final CCP
until the end of the 30-day review.
(ii) CCP with an EIS and ROD. The Refuge Manager and Planning Team
Leader submit the final CCP/EIS through line supervision for
concurrence and approval to release these documents to the public.
Provide the final EIS to interested and affected parties for at least
30 days prior to issuing a ROD. After a minimum of 30 days, submit the
ROD through line supervision for concurrence and approval by the
Regional Director. The Regional Director will sign and date both the
ROD and the final CCP. Following approval, print the final documents
and appropriate appendices. Provide the ROD or notification of its
availability to all interested and affected parties. Concurrent with
the release of the ROD, provide or make available the final, approved
CCP or a summary to interested parties. Effective with the signing and
release of the ROD, implement the CCP.
(iii) The final product of the CCP process is a stand-alone CCP
(the preferred alternative for the planning unit).
(e) Public Notice. Prepare a Notice of Availability of the final
approved CCP and NEPA document(s) and publish it in the Federal
Register. Notify the affected public of the availability of the final
document(s) and through other appropriate means, as identified in the
Public Involvement/Outreach Plan. Send copies of all final documents to
the regional and Washington Office Planning Coordinators. Make copies
of the final approved CCP and NEPA document(s) available to appropriate
elected officials; Federal, State, and local agencies; Tribal
governments; organizations; libraries; adjacent
[[Page 44378]]
landowners; and individuals requesting them.
(7) Implement Plan, Monitor, and Evaluate. Following formal
adoption of the CCP and public notification of the decision,
implementation of the management strategies identified in the CCP may
begin. Allocate funding and staff time to the priority management
strategies as defined in the CCP. Initiate the monitoring and
evaluation process identified in the CCP to determine if we are making
progress in achieving the planning unit purpose(s), vision, goals, and
objectives. Through adaptive management, evaluation of monitoring and
research results may indicate the need to modify refuge objectives or
management strategies.
(8) Review and Revise Plan
(a) Plan Review. Review the CCP periodically to decide if it
requires any revisions. Modify management activities periodically if
monitoring and evaluation determine that we need changes to achieve
planning unit purpose(s), vision, goals, and objectives.
(b) Plan Revision. As set forth in the Refuge Administration Act,
periodically review and revise the CCP at least every 15 years. Make
minor plan revisions generally through the use of a categorical
exclusion, if applicable. Document minor plan revisions that meet the
criteria of a categorical exclusion in an Environmental Action
Statement, in accordance with 550 FW 3.3C. Contact the Regional NEPA
Coordinator for an up-to-date list of categorical exclusions. If the
plan requires a major revision, then the CCP process starts anew at the
pre-planning step.
(c) Ongoing Public Involvement. Continue informing and involving
the public through appropriate means.
BILLING CODE 4310-55-P
[[Page 44379]]
[GRAPHIC] [TIFF OMITTED] TN13AU99.001
BILLING CODE 4310-55-C
[[Page 44380]]
Exhibit 2--Mandates to Consider During Comprehensive Conservation
Planning
------------------------------------------------------------------------
Applicable Yes/No
------------------------------------------------------------------------
Statutes
Alaska National Interest Lands ____________
Conservation Act of 1980, as
amended.
American Indian Religious Freedom ____________
Act of 1978.
Americans with Disabilities Act of ____________
1990.
Anadromous Fish Conservation Act of ____________
1965, as amended.
Antiquities Act of 1906............. ____________
Archaeological and Historic ____________
Preservation Act of 1974.
Archaeological Resources Protection ____________
Act of 1979, as amended.
Bald and Golden Eagle Protection Act ____________
of 1940, as amended.
Clean Air Act of 1970............... ____________
Clean Water Act of 1974, as amended. ____________
Coastal Zone Management Act of 1972, ____________
as amended.
Emergency Wetlands Resources Act of ____________
1986.
Endangered Species Act of 1973, as ____________
amended.
Farmland Protection Act of 1981, as ____________
amended.
Federal Cave Protection Act of 1988. ____________
Federal Noxious Weed Act of 1990.... ____________
Fish and Wildlife Act of 1956....... ____________
Fish and Wildlife Coordination Act ____________
of 1958.
Fishery (Magnuson) Conservation and ____________
Management Act of 1976.
Marine Mammal Protection Act of ____________
1972, as amended.
Migratory Bird Conservation Act of ____________
1929.
Migratory Bird Hunting and ____________
Conservation Stamp Act of 1934.
Migratory Bird Treaty Act of 1918, ____________
as amended.
National Environmental Policy Act of ____________
1969.
National Historic Preservation Act ____________
of 1966, as amended.
National Wildlife Refuge System ____________
Administration Act of 1966, as
amended.
Native American Graves Protection ____________
and Repatriation Act of 1990.
Refuge Recreation Act of 1962, as ____________
amended.
Rivers and Harbors Act of 1899...... ____________
Water Resources Planning Act of 1965 ____________
(sole-source aquifers).
Wild and Scenic Rivers Act of 1972, ____________
as amended.
Wilderness Act of 1964, as amended.. ____________
Executive Orders
Executive Order 11644, Use of Off- ____________
Road Vehicles on Public Lands.
Executive Order 11987, Exotic ____________
Organisms.
Executive Order 11988, Floodplain ____________
Management.
Executive Order 11990, Protection of ____________
Wetlands.
Executive Order 12898, Environmental ____________
Justice for Minority Populations.
Executive Order 12996, Management ____________
and General Public Use of the
National Wildlife Refuge System.
Executive Order 13007, Indian Sacred ____________
Sites.
Executive Order 13084, Consultation ____________
and Coordination with Indian Tribal
Governments.
------------------------------------------------------------------------
Exhibit 3--Checklist of Required Comprehensive Conservation Plan
Elements
____ Short description of the refuge to include:
____ Size
____ Establishment date
____ Regional setting (include area map)
____ Status of acquisition
____ Current management (including a map)
____ Current staffing
____ Existing partnerships
____ Purpose(s) for which we established the refuge
____ Refuge System mission and goals.
____ Ecosystem goals and objectives.
____ Goals and objectives for other landscape level plans.
____ National goals and objectives for species, species groups, or
programs (e.g., shorebirds, an endangered species, priority public use
program).
____ Identify any relevant mandates that apply to the area or the
proposed plan.
____ Description of the refuge environment:
____ the distribution, migration patterns, and abundance of fish
wildlife, and plant populations within the planning unit;
____ the archaeological and cultural values of the planning unit;
____ refuge land status map;
____ description of refuge (planning area) vegetation types (map
required);
____ description of vegetation/land cover and wildlife habitat
relationships;
____ description of wildlife habitat and species relationships;
____ describe the context of the refuge in meeting the habitat
needs of fish, wildlife, and plants, as they occur throughout their
natural ranges;
____ describe the natural and historic role of fire and other
ecological processes;
____ identify any existing special management areas (e.g.,
wilderness, wild and scenic rivers);
____ the relationship between the planning unit and other refuges
and protected areas.
Exhibit 3
____ Document and describe the following:
____ the need for administrative sites or visitor facilities and
areas within the planning unit that are suitable for such sites;
____ significant problems that may adversely affect the populations
and habitats of fish, wildlife, and plants within the planning unit and
the actions necessary to correct or
[[Page 44381]]
mitigate such problems;
____ summary of management history;
____ water quantity and quality requirements and issues;
____ identify all known or suspected sources of environmental
contaminants and their potential impacts (i.e., Contaminant Assessment
Program);
____ opportunities for compatible wildlife-dependent recreational
uses;
____ other significant issues of management or public concern;
____ the potential for special management areas (e.g., wilderness,
wild and scenic rivers, research natural areas).
____ Refuge Vision Statement
____ Refuge goals for at least the following areas:
____ habitat management (including land protection needs as
appropriate);
____ fish, wildlife, and plant populations management;
____ wildlife-dependent recreation;
____ others as needed to meet relevant mandates (e.g., wilderness,
wild and scenic rivers, cultural resources, etc.).
____ Objectives for each goal, including objectives to monitor the
status and trends of fish, wildlife and plants which will evaluate the
effectiveness of the plan.
____ Strategies to achieve each objective.
____ Map(s) of desired future conditions (e.g., habitat management
areas, facilities, wildlife-dependent recreation sites, etc.).
____ Identify step-down management plans required to fully implement
the plan.
____ Prioritized list of projects and estimated project costs (update
priorities and cost estimates annually).
____ Staffing required to implement the plan.
____ Potential partnership opportunities.
____ Monitoring plan to evaluate the effectiveness of the plan and
project implementation, including monitoring of target fish, wildlife,
and plant populations and their habitats.
____ Summary of public involvement process, comments, and consultation
and coordination with other Federal agencies, State conservation
agencies, and adjacent landowners.
____ Compatibility determinations.
____ Wilderness review.
____ Habitat/Land Protection Plans (if applicable).
____ NEPA documentation.
Note: Some of these required elements may not be available. In
these cases, you need to develop objectives or strategies in the
plan to acquire that information.
Exhibit 4--Refuge Comprehensive Conservation Plan Recommended
Outline
Cover Sheet
Title/Approval Page
Acknowledgments
Table of Contents
Summary
I. Introduction/Background
Refuge Overview: History of Refuge Establishment, Acquisition and
Management
Purpose of and Need for Plan
NWRS Mission, Goals and Guiding Principles
Refuge Purpose(s)
Refuge Vision Statement
Legal and Policy Guidance
Existing Partnerships
II. Planning Process
Description of Planning Process
Planning Issues
III. Summary Refuge and Resource Descriptions
Geographic/Ecosystem Setting
Refuge Resources, Cultural Values and Uses
Special Management Areas
IV. Management Direction
Refuge Management Direction: Goals, Objectives and Strategies/
Projects
Refuge Management Policies and Guidelines
V. Implementation and Monitoring
Funding and Personnel
Step-down Management Plans
Partnership Opportunities
Monitoring and Evaluation
Plan Amendment and Revision
Appendices
Glossary
Bibliography
RONS List
MMS list
Compatibility Determinations
Habitat/Land Protection Plan(s)
Compliance Requirements
NEPA Documentation
Summary of Public Involvement/Comments and Consultation/
Coordination
Mailing List
List of Preparers
Others, as appropriate
Exhibit 5--EA or EIS Incorporating Elements of a CCP Recommended
Outline
Cover Sheet
Acknowledgments
Table of Contents
Summary
I. Introduction, Purpose of and Need for Action
Purpose of and Need for Plan
NWRS Mission, Goals and Guiding Principles
History of Refuge Establishment, Acquisition and Management
Legal and Policy Guidance
Refuge Purpose(s)
Refuge Vision Statement
Refuge Management Direction: Goals
Refuge Management Policies and Guidelines
Step-down Management Plans
Description of Planning Process
Planning Issues
Plan Amendment and Revision
II. Alternatives, Including the Service's Proposed Action
Description of Each Alternative
Refuge Management Direction:
Objectives and Strategies
Funding and Personnel
Partnership Opportunities
Monitoring and Evaluation
Alternatives Considered, but Eliminated from Detailed Study
Summary Comparison of Alternatives
III. Affected Environment
Geographic/Ecosystem Setting
Refuge Resources, Cultural Values and Uses
IV. Environmental Consequences
Environmental Effects of Each Alternative
V. List of Preparers
VI. Consultation and Coordination with Others
Summary of Public Involvement/Comments
Mailing List
Appendices
Glossary
Bibliography
RONS List
MMS List
Compatibility Determinations
Habitat/Land Protection Plan(s)
Compliance Requirements
Others, as appropriate
Refuge Management
Part 602 National Wildlife Refuge System Planning
Chapter 3 Step-Down Management Planning
602 FW 3
3.1 What is the purpose of this chapter? This chapter provides
guidance on step-down management planning.
3.2 What is our policy for step-down management planning? Prepare
step-down management plans when required by policy or identified in
Comprehensive Conservation Plans (CCPs) and when they may be necessary
to provide additional detail for achieving objectives or implementing
management strategies identified in
[[Page 44382]]
CCPs. Step-down management plans should include public involvement and
National Environmental Policy Act (NEPA) compliance documentation, as
appropriate. Develop step-down management plans following the planning
process guidance in 602 FW 2. (Consult your NEPA Coordinator.)
3.3 What is the applicability of step-down management planning and
its relationship to Comprehensive Conservation Plans?
A. Step-down management planning is the formulation of detailed
plans that describe management activities necessary to achieve
objectives or implement management strategies identified in the CCP.
B. Step-down plans describe the specific management actions we are
to follow, ``stepping down'' from general goals, objectives, and
strategies. The preparation of new step-down plans or substantial
changes to existing step-down plans typically will require further
compliance with NEPA and other policies, and opportunity for public
review. For public use plans or other step-down plans dealing with
proposed uses of the refuge, prepare and append compatibility
determinations to the plan.
C. The CCP will identify which step-down management plans are
necessary and provide a schedule for their completion. While we require
certain step-down plans for all refuges, we may require others, such as
fire management and pest management depending on refuge resources,
specific program requirements, or the need for additional details to
implement management strategies identified in CCPs. In the absence of
an approved CCP, we may develop step-down plans to describe goals,
objectives, management strategies, and details necessary to implement a
management program.
D. As an alternative to separate step-down management plans, we may
address management programs in detail during the preparation of the
CCP. Determining which programs we can address in detail in the CCP
depends on several factors, including the degree of public interest,
the amount of available information, and the complexity of the issues.
3.4 How do we combine step-down management plans? Address
management subjects individually or combined into a single, integrated
step-down plan. This decision rests with the Refuge Manager. Base the
decision on management strategies defined in the CCP, the relationship
between management program areas, and the complexity of the programs
under consideration. Some program areas, such as fire management and
habitat management, logically suggest an integrated approach.
3.5 What is the list of potential step-down management plans?
Following is the current list of potential refuge step-down management
plans. Consider all of these plans during the CCP process. The CCP will
document which plans we require for the station.
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Step-down management plans Service manual reference
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Occupational Safety and Health (required). (Part 240)
Safety Program........................ (240 FW 1-9)
Safety Operations..................... (241 FW 1-8)
Industrial Hygiene.................... (242 FW 1-13)
Emergency Spill Response Plan......... (242 FW 6.1)
Compliance Requirements................... (Part 561)
Spill Prevention Control and (561 FW 3)
Countermeasures Plan.
Pollution Prevention Plan............. (560 FW 1 and 560 FW 2)
Hazardous Waste Contingency Plan...... (561 FW 6)
Special Management Areas.................. (Part 611)
Research Natural Areas................ (611 FW 1)
Public Use Natural Areas.............. (611 FW 2)
Wild and Scenic Rivers................ (611 FW 3)
National Trails....................... (611 FW 4)
Wilderness Area Management............ (Part 610)
Man in the Biosphere Reserve.......... (National Park Service)
Western Hemisphere Shorebird Reserves.
Ramsar Convention..................... (International Legal
Materials 11:963-976)
Minerals Management....................... (Part 612)
Minerals and Mining................... (612 FW 1)
Oil and Gas........................... (612 FW 2)
Long-Range Water Management Plan.......... (403 FW 1.4)
Cultural Resources Management............. (Part 614)
Habitat Management Plan (HMT)............. (Part 620)
Fire Management........................... (Part 621)
Wildlife-dependent Recreation............. (Part 605)
Hunting (required).................... (605 FW 2)
Fishing (required).................... (605 FW 3)
Wildlife Observation.................. (605 FW 4)
Wildlife Photography.................. (605 FW 5)
Environmental Education............... (605 FW 6)
Interpretation........................ (605 FW 7)
Law Enforcement........................... (Parts 440-459)
Populations Management.................... (Part 701)
Wildlife Inventories.................. (701 FW 2)
Propagation and Stocking.............. (701 FW 3)
Marking and Banding................... (701 FW 4)
Disease Prevention and Control........ (701 FW 7)
Fishery Management.................... (Part 710)
Trapping.............................. (631 FW 4)
Pest Management....................... (562 FW 2)
Exotic Species Management............. (Part 751)
Air Quality Management.................... (563 FW 2)
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[FR Doc. 99-20923 Filed 8-12-99; 8:45 am]
BILLING CODE 4310-55-P